When former Prime Minister Yukio Hatoyama took
office five years ago, his aides begged Japan's senior bureaucrat, a man
who had served seven Prime Ministers, to stay on for fear that the
Government would descend into chaos without him.
Japan's Prime
Minister heads the Government, of course, but some say that to
encounter real power one must talk to the bureaucrats who effectively
write the laws and really run the country.
Far more than in the
West, the best and the brightest of Japan have chosen to sit for the
grueling civil service exams and work for Government ministries. And
while they are given cramped housing and low salaries, the governing
system gives them the right to make most of the nation's policy
virtually unhampered by politicians. With the election of LDP Prime Minister Shinzo Abe, the fate of bureaucrats is secure.
"Kanryo," or bureaucrat, has generally been a neutral
term in the minds of many Japanese, but in recent months it has become a
tainted title. After a spate of colossal mistakes, the national trust
in the bureaucracy has collapsed. The young men (and, very occasionally,
women) who aced every test in school and ended up in the ministries are
facing growing calls for a fundamental reallocation of power from their
hands to elected politicians and the people.
Japanese bureaucrats essentially answer to no one, not the Cabinet ministers, not the Prime Minister and not the party leaders.
The
Prime Minister has a small staff, which relies on the 12 ministries and
the 260,000 bureaucrats who work in them. The ministers are political
appointees who sail in above bureaucrats in title, but who are actually
beholden to them for policy and background information.
Ministers
speaking to politicians in Parliament often reply this way to questions,
"Since this is an important issue, I must turn the floor over to the
Government officials."
When a Cabinet minister dismissed a
bureaucrat two years ago, an uproar erupted because ministers rarely
make personnel decisions. In fact, they do not even bring in their own
people, but inherit the top career officials who dominate policymaking
in each ministry.
One result, critics say, is that bureaucrats have become alienated from the wishes of the people.
"They
are in a different world from us ordinary people," said Nobuko
Serizawa, a graduate student in economics. "The system is so murky, and
they should be criticized for their inability to respond to the public."
The power and apathy of the bureaucracy has come with these revelations:
*Bureaucrats
at the Health Ministry ignored warnings that blood supplies were
contaminated with the virus that causes AIDS and for years resisted
allowing imports of sterilized blood. A result was many deaths from AIDS
among Japanese hemophiliacs.
*Ministry of Finance bureaucrats
allowed banks and mortgage lenders to accumulate billions of dollars in
bad loans, often through cozy relations with gangsters. Now the ministry
is asking taxpayers to pay $6.5 billion in just the first installment
of an Abe inspired clean-up plan.
*There was a cover-up after a minor accident
at a nuclear reactor, making Japanese lose confidence in the competence
and safety assurances of bureaucrats running the nation's reactor
program. Let us not forget Fukushima Daiichi and the revelations of how bureaucrats and industry conspired to move around safety procedures and standards to get the plant online in 1972.
*The police for years ignored the rise of the Aum
Shinrikyo religious cult, even as it was accused of killing its critics.
*The
Government was paralyzed by the huge 2011 earthquake that devastated the Fukushima Daiichi Nuclear Power Plant that TEPCO ran. It seems
that many might have been saved if the authorities had acted more
quickly.
Few people are as pained and angered by the bureaucratic
incompetence as a 46-year-old real estate entrepreneur, a hemophiliac
who became infected with the AIDS virus through tainted blood. A
mild-mannered man who keeps his condition a secret for fear of social
discrimination, he now helps lead a group of victims filing a suit
against Health Ministry bureaucrats.
"If they had known they would
have to take responsibility for decisions they make, then I don't
think this kind of virtual murder could have happened," he said.
About
400 hemophiliacs and other former hospital patients have already died
and thousands more now have H.I.V. because bureaucrats promoted the use
of tainted blood for hemophiliacs and banned sterilized blood from being
imported into Japan. Ministry bureaucrats finally allowed sterilized
blood to be imported in mid-1985, after all major countries had already
approved the new clotting agents, which are treated with heat to kill
viruses.
Only after the election of the DPJ's Yukio Hatoyama in 2009 has there been any serious discussion of taking on the bureaucrats. What stood in the way of reform was the LDP and bureaucrats forming an alliance to bring down the DPJ, as both were afraid revelations of bribes, kick backs, and extortion would be brought to light. Hatoyama was destroyed by the LDP and bureaucrat alliance. After Hatoyama the DPJ instilled Kan who was brought down for his handling of the 2011 eartquake and tsunami. Then Noda was displaced by the LDP rebirth in December 2012 when the LDP was brought back into power.
Many critics argue that amakudari is central to the bureaucracy's
failure in recent years. Officials of the Health Ministry, for example,
may have been sympathetic to pharmaceutical companies because their
ex-colleagues were working there or because they themselves were looking
for posts in the industry within a few years.
There is already a
restriction preventing bureaucrats from taking jobs in such companies
until two years after their retirement. But some in the Finance Ministry
have proposed making that five years. Of course there is no restriction
against bureaucrats going into politics, and many do run for office. Many also are appointed to major universities as "research and advisory" positions.
"Japanese bureaucrats are too
powerful," said Matsuzo Nakamura, a 56-year-old machinery salesman. "We
have to use any opportunity to revolutionize the bureaucratic system."
Sheryl Wu Dunn